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Friday, July 28, 2006

When Service Conditions are Equal

Tom has made an excellent map of train verus bus usage in the Northern Suburbs. It's a great, informative resource for everyone involved in this debate, and I encourage you to check it out.

Preferences

His analysis highlights one of the key difficulties, in trying to predict which scenario people will prefer: it's very hard to construct a "fair" comparison between bus and rail. The most common comparison is between trains on tracks and buses on roads - which skews the comparison because the roads are choked up with cars but the tracks are not. The fair comparison would be between trains on tracks and buses on busways. Of course, we can't run both rail and busway to Johnsonville, just to see which people prefer!

If we did, I suspect preferences might be split down the middle, amongst existing rail users. (Trains are more spacious, but buses are more frequent and take you into the CBD.) Existing rail users will be well served, in different ways, by both options. And that's important. The busway must done in such a way that it is a fair deal for existing rail users. If "we" take away their trains, we must compensate with things like more frequent service and seamless travel to the CBD. Things should work out about even (or better) for existing rail users. So this debate is not really about them. This debate is about existing bus users - the people who cannot walk to a rail station, and whose bus routes will suffer increasing delays and congestion if the busway does not go ahead. Already, traffic congestion costs us hours each week, hours which we could be spending with our families. Only the busway will give that time back to us (and our families). Once existing bus users understand that, their preference will be clear.

"When Service Conditions are Equal"

Anyway, back to Tom's comments, about the preferences of commuters who do have a choice. He quotes a page which reads as follows:

Because transit use is a function of travel time, fare, frequency of service, population, and density, increased transit use can not be attributed to rail transit when these other factors are improved. When these service conditions are equal, it is evident that rail transit is likely to attract from 34 percent to 43 percent more riders than will equivalent bus service. The data do not provide explanations for this phenomenon, but other studies and reports suggest that the clearly identifiable rail route; delineated stops that are often protected; more stable, safer, and more comfortable vehicles; freedom from fumes and excessive noise; and more generous vehicle dimensions may all be factors.


Again, that's great stuff, and should considered by everyone involved in this debate.

Are they Equal Now?

Let's look one-by-one at those points. Are service conditions currently equal, between bus and rail?

Travel time: bus has a significant advantage off-peak; rail often has an advantage on-peak (depending on how much traffic congestion is slowing the buses). On-peak rail certainly has an advantage in terms of predictable travel times. I believe Tom's data is journeys to work, so his map relates to on-peak travel choices.

Fare: One month's bus travel from Johnsonville = approx $86 to $103 (depending on how many days in the month, and whether you ride on into the CBD or get off at Wellington station). One month's rail travel = $60 (or $45 on a "Peace Train" ticket).

Frequency of Service: bus is once every 5 mins at height of morning peak; train is every 13 or 26 mins

Population and Density: Tom's approach successfully eliminates these variables (his train and bus passengers come from the same places)

In otherwords, service conditions are not currently equal. I'd be interested to know how the fare differences influence choice.

Factors that Make Rail Attractive

Now, let's look at the likely reasons that attract consumers to rail, according to the page Tom quoted. Fortunately, some of these attractive features can be preserved in the busway scenario.

Clearly Identifiable Rail Route: The busway will follow the same route. (And it will be important to ensure the the "return routes" of the off-peak buses are also clearly identifiable. I see that as a weekness in the current busway scenario, but I think it can be fixed fairly easily. I'll post details when I get round to it.)

Delineated Stops that are Often Protected: The busway will use the same stops (the existing rail stations)

More Stable, Safer, and More Comfortable Vehicles: Rail has the edge here, although it is worth noting that stability and comfort arise as much from the route as from the vehicle. A key ingedient in comfort is a route with gentle grades, gentle curves and no stops and starts caused by traffic congestion. In terms of the route, busway and train are virtually identical (as you would expect if you put a busway on an ex railway track!)

Freedom from Fumes and Excessive Noise: again, an edge for rail, although at least the busway gets away from fumes and noise caused by other vehicles.

More Generous Vehicle Dimensions: rail wins this one too. (Which is ironic, considering how many people are afraid the buses won't fit through the tunnels!)

Conclusion

Comparing rail with bus-on-road is not entirely relevant to this debate. The better comparison is comparing rail with bus-on-busway (serving the same suburbs via the same route) . Unfortunately, that comparison is much harder to make.

1 Comments:

Anonymous Anonymous said...

John, you rightly point out that the issue of public transport (PT) user preference between passenger rail and bus is not the key issue with respect to the North Wellington
Public Transport Study
. The greatest differences in the study's four proposed Scenarios will be PT service to areas, such as Churton Park and Newlands, that rail does not (and cannot) reach. The relative merits of rail over bus are not so significant.

But passenger rail proponents, such as Tom
Beard
and Gareth
Hughes
, repeatably claim people "prefer rail over buses" in their blogs like "Busway?
No way!"
(Tom's) and "Busways
and Bus Rapid Transport: The International and New Zealand context.
(Gareth's)". For example we have:

"A better comparison is Johnsonville, where commuters really do have a choice between bus and train. And most choose the train.

All of which is consistent with US studies, which conclude that when "service conditions are equal, it is evident that rail transit is likely to attract from 34% to 43% more riders than will equivalent bus service".

From Tom's ""Back
on track: choosing rail"
"

The "US studies" appear to be a city-wide statistical study that obviously compares all bus patronage against rail patronage. There is no direct evidence I could see in the cited study of buses and rail in a comparible corridor showing people prefer rail.
As a sidebay I would note that the evidence from the UK is not so compelling. As outlined in the UK National
Audit Office
report "Delivery Chain Analysis for Bus Services in England" (PDF):

"3 As part of its ten-year transport strategy in 2000, the Government set a Public Service Agreement target (PSA3), which it has subsequently amended, to increase bus and light rail usage by 12 per cent in the ten-year period between 2000 and 2010, with the additional challenge of achieving growth in every English region. The Audit Commission and the National Audit Office undertook a joint study to examine whether the delivery chains for achieving growth in bus passenger numbers are efficient and fit for purpose.

4 The target for overall growth in bus usage is likely to be met but it is unlikely that there will be growth in every English region. Nationally, bus and light rail usage has increased by 8 per cent in the first four years to 2004-05, suggesting that the overall target for growth will be met. However, this is almost entirely due to the growth of bus usage in London (which currently accounts for 44 per cent of all bus travel in England). All of the other English regions show continued decline, averaging 7 per cent."
(page 6, bold added for emphasis)

Back to the main point though, it is absolutely true that a "bus-on-street" service caught in car congestion is inferior to passenger rail on a dedicated rail corridor (there is still little comment from rail advocates on why a majority of North Wellington residents must be condemed to use a "bus-down-Ngarunga Gorge" service so a minority can still take the train).

But they further claim "where commuters really do have a choice between bus and train . . . most choose the train" !!! I challenge this claim.

The truth is there is a huge and ongoing debate about whether commuters have any inherent preference of rail over buses "where both provide an equivalent service". Of course, just as rail transit (especially Light Rail Transit (LRT)) advocates have "their" evidence from dedicated sites such as Heritage Trolley; Todd Littman's Victoria Transport Policy Institute or a world-wide favourite Light
Rail Now
, so Bus Rapid
Transit (BRT)
advocates (many of whom are more debunkers of passenger rail advocates than BRT proponents) have "their" evidence such as Randle O'Toole's famous "Great Rail Disasters", The Bus Rapid Transit Policy Center and The Reason
Foundation
and Wendell Cox's Public Purpose Site.

I found much of the material from both sides of the argument is more interesting (if only to get a idea of the "heat" of the argument) than enlightening. It is especially difficult to understand how any specific evidence relates to the specific scenarios outlined in Stage 2 of the NWPTS.

There are two other sources of information I rate as more authorative: peer reviewed articles from transport academics and government reports.

There are many peer reviewed articles by academics. I would suggest "A
bus-based transitway or light rail? Continuing the saga on choice
versus blind commitment
" by Prof David Hensher (PDF) is a good start, firstly because it based on Australian evidence and secondly because it is quite readable (yes, it is sceptical of light rail).

I found “Comparing Ridership Attraction of Rail and Bus” by Moshe Ben-Akiva (MIT) and Takayuki Morikawa (Nagoya University) in Transport Policy Journal even more compelling in evidence terms:

“[T]here is no evident preference for rail travel over bus when quantifiable service characteristics such as travel time and cost are equal, but a bias does arise when rail travel offers a higher quality service…[I]n order to increase ridership to public transit, the service should be designed to have favorable levels of passenger convenience. Whether it is [a] rail system or bus system should not be of great importance.”
From “Comparing Ridership Attraction of Rail and Bus”, Transport Policy Journal 9, pp.107-116 (it is in the Wellington Main Library but only the abstract is on the net Here)

It is actually quite logical, when you think about it, that people will make the choice to use, or not use, public transport on the basis of it's attributes such as: travel time (primarily origin-destination); cost (primarily the fare); frequency of service; headway (time between vehicles); accessability on both ends of the trip; hours of service; safety; number of transfers (the fewer the better); wait times, not on whether it has steel or rubber tires.

This view appears to also be reflected in government reports. Most well known is the US United States General
Accounting Office
Report "Bus Rapid Transit Shows
Promise
"
(2001 1.1Mb PDF) whose conclusion states:

"A number of transit options are available to communities to help address growing traffic congestion. One such option is Bus Rapid Transit. Bus Rapid Transit is an emerging approach to using buses as an improved highspeed transit system. By employing innovative technologies such as signal prioritization, better stations or shelters, fewer stops, and faster service on more attractive vehicles, Bus Rapid Transit shows promise in meeting a variety of transit needs. In addition, in many communities Bus Rapid Transit systems can have lower capital costs than Light Rail systems yet can often provide similar performance. Further, Bus Rapid Transit’s flexibility may be a potentially valuable feature for many communities with sprawling patterns of development, where public transportation needs can be more complex and difficult to address than focusing on a single central business district."
(Page 32)

The equivalent UK report by their Commission for
Integrated Transport
is "Affordable mass transit - guidance" published in September 2005. The Forward noted:

"The laudable aims of Transport 2010, whereby 25 new light rail lines were envisaged by 2010, have not materialised. Currently there are 7 urban centres served by a light rail system, and, according to National Audit Office, 4 of these are running at a loss. The government now considers that the construction of 25 new lines might not be practicable, offer value for money, or be affordable, and it has recently withdrawn final approval for 3 proposed schemes because of escalating costs. What has happened?"

Further into the report, the guidance report notes concerns with previous Light Rail Projects failing to deliver expected patronage "Recent major public transport investment in urban areas has tended to concentrate upon light rail systems. However, the current rate of major mass transit scheme delivery is insufficient to meet the aspirations previously set by Government." (page 14) and "that bus based options are likely to provide the most cost effective mass transit solution for ‘most corridors’" (page 15).

And when comparing bus and rail alternatives "where service levels are similar, if bus and rail-based alternatives are not modelled with the same mode constant this must be carried out as a sensitivity test" as outlined below:

"Use of Mode Constants

3.28 The effects of chosen mode constants for use in the demand modelling should be carefully considered. This is particularly relevant when considering the differences assumed regarding the perception of LRT and bus modes.
Typically, selected mode constants implicitly include a range of service related factors, when in reality LRT and bus modes offering similar levels of service are likely to provide similar levels of attraction.


This would appear to be supported by general experience of LRT in the UK (where patronage has tended to be over-forecast) and the particular example of Crawley where bus patronage is around 40% above forecast. Thus, it is suggested that where service levels are similar, if bus and rail-based alternatives are not modelled with the same mode constant this must be carried out as a sensitivity test. An evidence based checklist (using local data where possible) should be established to identify the ‘level of service’ impacts associated with each mode.

This could include:
• Seating versus standing (comfort versus capacity);
• Reliability;
• Information;
• Access;
• Need for interchange (and interchange conditions); and
• Integration between modes (particularly timetabling integration)."
(Page 64, bold added for emphasis)

In conclusion, all the above highlights the broad claim that "people prefer rail over buses" is, at best debatible, but may just be an Urban legend.
The reality is people prefer a better PT service over a worse one. The merits of the alternatives need to be compared by the attributes of the service provided. In the case of the NWPTS, this is outlined in the technical reports on the four proposed scenarios.

The challenge for any supporter of any scenario is to show why everyone who lives in North Wellington will receive the best PT Service from the supported scenario. If some residents are to have a worse PT service into the future, then this must be highlighted and a compelling reason why it is OK for these residents to be sacrificed for the greater public good.

Mon Aug 07, 09:20:00 pm  

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